UNSC: U/SYG HOLMES ON PROTECTION OF CIVILIANS IN

UNCLAS USUN NEW YORK 000541

SIPDIS

SIPDIS

DEPT FOR IO AND PRM; USAID FOR DCHA; NSC FOR PMARCHAM;
GENEVA FOR NKYLOH

E.O. 12958: N/A
TAGS: PHUM PREF UNSC XA
SUBJECT: UNSC: U/SYG HOLMES ON PROTECTION OF CIVILIANS IN
ARMED CONFLICT


SUMMARY


1. (U) On June 22, Under Secretary for Humanitarian Affairs
John Holmes briefed the Security Council in an open session
on the protection of civilians in armed conflict.
His remarks included first-hand observations from recent
field missions to Chad, Darfur, the Central African Republic,
northern Uganda and Somalia. Holmes stressed the need for
greater international efforts to protect civilians, focusing
on three areas of particular concern: the targeting of
civilians, forced displacement, and access and security.

2 (U) Though the topic of this biannual debate in the
Security Council is normally not contentious, Holmes'
statement included a reference to civilian casualties in Iraq
and Afghanistan that failed to distinguish between the
deliberate targeting of non-combatants by insurgents and
military activity that inadvertently harms civilian
populations. U.S. and UK interventions stressed this
distinction, which Holmes acknowledged in his closing
remarks.


3. (U) During more than four hours of statements, delegations
emphasized the primary role of national governments in
providing protection to civilians, although many also noted a
role for the international community when states are unable
or unwilling to provide this protection. Some stressed the
role of the Security Council in conflict prevention and many
emphasized the need to enhance protection for internally
displaced persons (IDPs). Particular concern about sexual
and gender-based violence was also raised by a number of
delegations. The EU and others expressed support for the
ICC's efforts to address impunity. Holmes proposed a review
of the effectiveness of peace-keeping operations in
integrating civilian protection components and recommended
that the Secretariat more regularly bring situations of
concern in this area to the Council's attention.

TARGETING OF CIVILIANS


4. (U) Holmes condemned the impact of the recent violence in
Mogadishu, Somalia on civilian populations and stated that
fighting in the West Bank and Gaza has been "characterized by
the indiscriminate use of force," including rocket attacks on
Israel. Holmes also addressed the impact of conflict in Iraq
and Afghanistan on civilians, making the following comment:
"In Afghanistan and also in Iraq, in addition to the dreadful
toll of civilian deaths caused by insurgents and militias on
all sides, the civilian casualties resulting from security
operations of multinational forces and government and
security forces are of increasing concern, even if there is
no suggestion of deliberate targeting." While other
delegations did not explicitly connect the operations of
multinational forces with civilian casualties, many did
deplore non-combatant deaths in Iraq and Afghanistan, as well
as other conflict locations like Sudan and Chad.


5. (U) During the U.S intervention, Ambassador Sanders
responded that insurgent activity aimed at civilians is
fundamentally different from operations by the multi-national
forces aimed at restoring peace and stability for the people
of Iraq and Afghanistan. (The U.S. statement can be found at
www.un.int/usa/07 159.htm) The UK provided a similar
response and in his closing remarks, Mr. Holmes reassured
members that he recognized a difference between deliberate
targeting of civilians and other actions that cause
collateral damage to civilian populations. Nevertheless,
Holmes stressed that it remains the duty of parties to
conflict to avoid collateral deaths with all the means
available to them.


6. (U) Holmes noted particular concern over the prevalence of
sexual and gender-based violence in conflict settings,
reiterating that UNSCR 1674 condemns "in the strongest terms"
all sexual and other forms of violence against civilians in
armed conflict, in particular women and children. The U.S
intervention highlighted the use of rape as a tactic of war
in Burma as well as ongoing concerns over gender-based
violence in Darfur. Many other delegations expressed their
grave concern both with the situation in Darfur specifically,
and with gender-based violence more generally.

FORCED DISPLACEMENT
E




7. (U) Holmes cited a report of the United Nations High
Commissioner for Refugees (UNHCR) that indicates an increase
in the number of refugees in 2006 for the first time in four
years. Holmes also cited concern over the estimated 24.5
million internally displaced persons (IDPs). He called for
stronger efforts to prevent the conditions that lead to
displacement as well as dealing with the results. Many
member states also called attention to the plight of IDPs.
Russia insisted that the status of IDPs is not recognized by
international law and that UNHCR should only get involved at
the request of the states concerned.

ACCESS AND SECURITY


8. (U) Holmes stressed that the targeting and harassment of
aid workers continues despite the Council's repeated calls
for safe and unhindered access of humanitarian staff to
civilians in armed conflict. Holmes cited particular concern
over Darfur, where hijackings and abductions threaten
humanitarian operations, and also noted restricted access in
Sri Lanka and limited access in Iraq due to insecurity. Many
delegations deplored the recent killings of humanitarian
workers and journalists in Sudan, Sri Lanka, and other
conflict zones.

FOLLOW-UP AND RECOMMENDATIONS


9. (U) All delegations stressed the need to close the gap
between policy and practice in the protection of civilians.
Many cited a need for the Security Council to focus on
conflict prevention. Holmes highlighted the important role
of regional organizations and called upon African countries
to include civilians in post-conflict reconciliation efforts.



10. (U) Nearly all delegations deplored the "culture of
impunity" whereby perpetrators of acts of violence against
civilians are not held to account. Many delegations,
including Japan, Mexico, the EU, CANZ, Peru, Liechtenstein,
and The Republic of Korea, emphasized the need for the ICC to
meet this challenge, and Rep. of Congo urged that
prosecutions not be "politicized."


11. (U) Holmes' statement provided two specific
recommendations to enhance protection efforts. He proposed a
review and evaluation of UNSC language on civilian protection
and its implementation, recommending "a systematic look at
the practical effect that the inclusion of protection of
civilians in a number of peacekeeping mandates has had on the
ground and to draw the right lessons for future deployments."
Holmes also pledged to "bring situations of grave
humanitarian concern to the Council's attention, through
briefings, through the reports of the Secretary general, or
where necessary, and pursuant to resolution 1674, directly
through the Secretary General."
WOLFF